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Public Disclosure Authorized
IPP286
V2
PROPUESTA DE SUBVENCIÓN DEL FONDO FIDUCIARIO DEL
GLOBAL ENVIRONMENT FACILITY (GEF)
AL GOBIERNO DEL PARAGUAY
PARA LA EJECUCIÓN DEL PROYECTO
MEJORANDO LA CONSERVACIÓN DE LA BIODIVERSIDAD Y EL
MANEJO SOSTENIBLE DE LA TIERRA EN EL BOSQUE
ATLÁNTICO DEL PARAGUAY ORIENTAL
Public Disclosure Authorized
Public Disclosure Authorized
(PARAGUAY BIODIVERSIDAD)
EVALUACIÓN SOCIAL
Asunción - Paraguay
Septiembre 2007
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BASES PARA UNA EVALUACION SOCIAL DEL PROYECTO DE
PARAGUAY BIODIVERSIDAD
A.- ESCENARIOS Y DESAFÍOS SOCIALES:
1.- Contexto socio-comunitario y territorial:
El proyecto Paraguay Biodiversidad se enmarca dentro de la aplicación de la Política Ambiental
Nacional – PAN e interviene sobre sistemas ambientales transfronterizos como el Bosque Atlántico,
emprendimientos hidroeléctricos de Itaipú, Acaray e Yguazú, Acuífero Guaraní , entre los mas
importantes en el sector..
Territorialmente involucra cuencas hídricas de gran importancia desde la perspectiva de la
formación de los humedales así como el sistema de formación de las cuencas del río Paraná y rio
Paraguay. Entre las cuencas afectadas se pueden citar: Acaray e Yguazú, Ñacunday, Yacuy guazu,
Pirapo, Tembey,Tebicuary, Jejui, Carapa, Limoy, etc.
Territorialmente abarca los departamentos de Canindeyú, Caaguazú, Guaira, Caazapá, Alto Paraná
e Itapúa, involucrando territorios jurídicos y administrativos de casi un centenar de Municipios. El
territorio del proyecto de biodiversidad reúne a mas de 1.3 millones de habitantes asentados en
comunidades rurales y cerca de 50 centros urbanos, cabeceras distritales, mayores de 5.000
habitantes.
La región del proyecto se caracteriza por su gran densidad humana; heterogeneidad etno- cultural
(indígenas, criollos, brasileños, árabes, orientales, centroeuropeos, mennonitas, etc) un alto
desarrollo del sector rural; expansión de la frontera agropecuaria; incipiente proceso de
industrialización; deforestación masiva; fragilidad del sistema legal- institucional; emergencia de
movimientos sociales y reivindicaciones de tierras, viviendas y obreras- gremiales; deficiencias en
las líneas de coordinación y complementación interinstitucional; influencia importante de los
medios masivos de comunicación locales y de fronteras (Brasil y Argentina).
2.- El perfil de unas 4.200 familias, 27.000 habitantes estudiados en el marco del PRODERS
(2006), registra niveles de extrema pobreza para mas del 44% de las unidades familiares y
consideradas no pobres, un 34%.
El 66 % de las unidades familiares encuestadas en el marco del proyecto se sitúan por debajo del
umbral de la pobreza y constituyen familias de productores agrícolas campesinos subsistenciales.
3.- En las áreas de influencias directa de las cuencas hídricas se observan movimientos
organizacionales de productores interesantes como los Comités de Agricultores (aglutina a 57%
de los entrevistados) Asociaciones y comisiones de productores (21%), grupos organizados
temporales (Comisiones pro, 21%). Los movimientos cooperativos son escasos, señalándose la
presencia de estos modelos organizacionales entre las comunidades de migrantes como las
mennonitas, brasileñas, japonesas, etc, con importante número de socios y volumen de operaciones.
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4.- Entre las unidades familiares de escasos recursos, el acceso a la tierra condicionan la
subsistencia y las posibilidades productivas y competencia por mercados. El 30% de las fincas son
menores de 5 has; 33% entre las 5 y 10 has; 30% entre 10 y 20 has; solo 7% con mas de 20 has.
5.- El territorio del proyecto contrasta la expansión y densidad del cultivo de la soja, maíz y trigo en
manos de explotaciones mayores de 20 hectáreas, con tecnologías avanzadas contrastando
volumen y superficie cubierta con la de los productores subsistenciales, sin tierras y escasa
tecnología que comparten el mismo territorio.
B.- OBJETIVOS
El objetivo general del proyecto es promover la conservación de la biodiversidad y el uso
sostenible de los recursos naturales en el Bosque Atlántico del Alto Paraná en el Paraguay
Oriental.
Sus objetivos específicos son:
™ Consolidar el sistema nacional de áreas silvestres protegidas (SINASIP), incluyendo tanto
áreas públicas como privadas.
™ Fortalecer los refugios que constituyen núcleos de la biodiversidad y vincularlos mediante
una red de corredores seleccionados en base al criterio de microcuencas.
™ Promover la adopción de sistemas de producción integrados y económicamente viables
entre los productores rurales.
™ Fortalecer la institucionalidad ambiental en el ámbito del proyecto y promover la adopción
de políticas públicas orientadas a la conservación y el desarrollo sostenible.
™ Promover la descentralización de la gestión ambiental en el área de proyecto.
C.- COMPONENTES
El proyecto comprende los siguientes componentes:
Componente 1: Fortalecimiento de las áreas protegidas públicas y privadas
(Costo Total: US$ 1.949.279) incluyendo los subcomponentes 1.1 “Gestión de Áreas Protegidas
Públicas”, 1.2 “Creación y gestión de Áreas Protegidas Privadas” y 1.3 “Corredor Biológico
Carapá”. A través de estos subcomponentes, este componente conservará y regenerará los refugios
de los núcleos de la biodiversidad dentro del BAAPA del Paraguay.
Componente 2: Promoción de la gestión sostenible de la tierra
(Costo Total US$ 8.446.750) incluyendo los subcomponentes 2.1 “Promoción de Prácticas
Agrícolas Sostenibles” y 2.2 “Instrumentos e Incentivos Económicos para la gestión de
recursos naturales”. Éstos promoverán la gestión sostenible del suelo dentro de los corredores de
conexión entre los refugios fortalecidos a través del Componente 1. De importancia crucial, estas
conexiones crearán vínculos biológicos continuos entre los refugios para permitir el flujo de la
información genética.
Componente 3: Desarrollo Institucional
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(Costo Total US$ 2.614.145) incluyendo al subcomponente 3.1 “Capacitación y entrenamiento”,
el subcomponente 3.2 “Comunicación y difusión de la PAN y el ENPAB”, el subcomponente
3.3 “Estudios especiales vinculados a la biodiversidad” y el subcomponente 3.4 “Educación
Ambiental”. Este componente fortalecerá las instituciones y las políticas y estrategias (PAN y
ENPAB), particularmente a la SEAM y sus oficinas descentralizadas que trabajan dentro del área de
influencia del proyecto para proveer apoyo a los productores. Llevará a cabo estudios e
investigaciones especializadas en el ámbito de la biodiversidad y que servirán de soporte a acciones
y objetivos del proyecto, y ofrecerá programas educativos para elevar la conciencia acerca de la
conservación de la biodiversidad y de su importancia para los medios de vida de las personas.
Componente 4: Gestión, Monitoreo, Evaluación y Difusión del Proyecto
(Costo Total US$ 2.406.826) incluyendo el subcomponente 4.1. “Gestión y Administración del
Proyecto”, el subcomponente 4.2. “Monitoreo y Evaluación” y el subcomponente 4.3
“Difusión del Proyecto”. Esto comprenderá la gestión y administración del proyecto, así como el
diseño e implantación de un sistema de seguimiento, monitoreo y evaluación en forma
independiente y paralela a la ejecución del proyecto, así como la difusión de los objetivos y
actividades del proyecto.
D.- VALORACION SOCIAL DEL PROYECTO
D.1.- EL PROYECTO EN SU CONJUNTO LOGRARA:
™ Compromete una inversión Total de 15.820.000 USA.
™ Dinamizará la participación multisectorial de recursos institucionales: PRODERS, ITAIPU
Y GEF.
™ La dimensión y ejecución del proyecto se basamenta en 4 ejes de mucha importancia
(componentes) y 12 subcomponentes creando un marco auspicioso para lograr una alta
eficiencia en las actividades de coordinación para la participación interinstitucional
nacional, regional y local asi como comprometer a los actores locales y beneficiarios en el
desarrollo buenas practicas ambientales y sostenibilidad del proyecto a largo plazo.
™ Se encuentra un escenario regional (nacional e internacional) adecuados para el desarrollo
de la iniciativa. Geopolíticamente en las fronteras de Paraguay-Brasil y Argentina y
regiones descentralizadas conformadas por los departamentos y jurisdicciones municipales.
™ Las acciones del proyecto cubre casi el 25% de la región oriental, y constituye los
territorios mas críticos del país en términos de uso de suelo, convivencia de grupos
etnoculturales en el sector agropecuario y forestal y desarrollo de agroindustria.
™ Se conseguirá potenciar las buenas prácticas en el sector recursos naturales y desarrollo
social, bajo el liderazgo de organismos binacionales, la cooperación internacional y la
participación efectiva de instituciones nacionales, municipales y locales.
™ Se intervendrá en el marco del proyecto, mas de 46.000 kms2 del territorio nacional con
una poblacion1.300.000 habitantes.
™ Involucramiento de sistemas ambientales como Bosque Atlántico, humedales, cauces o
cuencas hídricos; Ares protegidas públicas y privadas, Refugios biológicos, etc, obligarán la
adecuación de todos los sectores a la aplicación efectiva de las leyes y normativas
ambientales nacionales e internacionales.
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™ Se logrará fortalecer los refugios que constituyen núcleos de la biodiversidad y vincularlos
mediante una red de corredores seleccionados en base al criterio de microcuencas,
instalando efectivamente los Consejos de Aguas por cuencas hídricas.
™ Se instalará una nueva dinámica y relaciones armónicas de adecuación, acomodación entre
las identidades etno-culturales variadas y heterogéneas involucradas de manera directa e
indirecta: indígenas, criollos, descendientes de japoneses, centroeuropeos, árabes, libaneses,
etc.
™ Se impulsará, preparará y difundirán programas de información, comunicación y educación
ambiental a través de los medios masivos de comunicación: radio, TV, prensa y
alternativos.
D.2.-ATENDIENDO LOS COMPONENTES DEL PROYECTO SE TENDRA.
Componente 1: Fortalecimiento de las áreas protegidas públicas y privadas
™ Se logrará la creación y articulación-complementación de 10 Áreas Protegidas Titulación y
elaboración de planes de manejo y bajo el régimen de restauración. Esto permitirá una
efectiva consolidación de iniciativas institucionales sobre los territorios
™ Se podrá administrar un banco de datos y sistemas de monitoreo y evaluación, potenciando
de esta manera los valores naturales, científicos y sociales en el área de influencia directa e
indirecta.
™ Se fortalecerá y consolidará vínculos biológicos continuos entre las Áreas protegidas para
permitir el flujo de la información genética, con amplia repercusión en los marcos legales e
institucionales asi como la comunidad científica nacional e internacional.
Componente 2: Promoción de la gestión sostenible de la tierra
™ Efectiva incorporación de 500.000 hectáreas, dentro del panorama rural del corredor de
conservación recibiendo los beneficiarios el apoyo para las buenas prácticas sobre
biodiversidad. En total se espera contar con 1.000.000 de hectáreas manejadas bajo
criterios ambientales.
™ Se dispondrá en el marco del proyecto y en las áreas directamente intervenidas, un numero
importante de recursos institucionales- técnicos y operativos- en contacto permanente con
las organizaciones locales y las unidades familiares sujetos del proyecto.
™ Involucramiento directo y permanente de 45 jurisdicciones político-administrativas
municipales con una población estimada (2007) de 1.364.000 habitantes, 227.300 unidades
familiares, cerca de 110.000 unidades productivas rurales.
Componente 3: Desarrollo Institucional
™ Se logrará la consolidación y coordinación de iniciativas institucionales publicas y privadas
a nivel nacional, regional y municipal.
™ Efectiva aplicación de políticas públicas y marcos legales nacionales e internacionales.
™ Consolidación de la política de descentralización de las políticas publicas sobre medio
ambiente y recursos naturales a nivel de gobernaciones y municipios.
™ Programación participativa y difusión de iniciativas de información y comunicación sobre
el proyecto y las actividades de las instituciones involucradas.
™ Se impulsará , administrará y monitoreará la elaboración y administración de Planes de
Gestión para 10 Áreas protegidas.
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™ Se articulará y consolidará la participación multisectorial de recursos institucionales:
PRODERS, ITAIPU Y GEF. Asimismo, se fortalecerá la coordinación-complementación
de iniciativas sostenibles con 5 Gobernaciones y 45 Municipios
Componente 4: Gestión, Monitoreo, Evaluación y Difusión del Proyecto
™ Se convocará la participación multisectorial y de organizaciones de la sociedad civil para el
diseño e implantación de un sistema de seguimiento, monitoreo y evaluación en forma
independiente y paralela a la ejecución del proyecto.
™ Se logrará la difusión masiva de los objetivos y actividades del proyecto por los medios
masivos regionales y locales y medios alternativos.
D.3.- LOS VALORES SOCIALES DEL PROYECTO PARAGUAY BIODIVERSIDAD SE
CENTRAN:
a.-La Estructura de preparación del Proyecto Paraguay Biodiversidad en las fases de
estudios , planeación y planes de gestión así como la organización institucional y la previsión de
recursos operativos ( recursos humanos e institucionales) garantizan un buen desarrollo de las
actividades programadas. Asimismo, se observa un eficiente sistema administrativo y financiero y
la articulación interinstitucional para lograr una eficiencia-eficacia en todas las fases garantizan un
optimo desarrollo del proyecto.
b.- La inversión de 15.8 millones de USA en el marco del proyecto impactará directamente a 45
municipios con una inversión estimada de 366.600 USA para cada uno; 12 USA per capìta para la
población afectada directamente, ceca de 150 USA por unidad familiar rural que participa
directamente de las iniciativas.
Los componentes 1 y 2, administrarán más de 11.3 millones de USA, o sea más del 68% del costo
total.
c.- Unos 5.144.000 USA , 32% serán invertidos para reforzar el funcionamiento, la coordinación y
la eficiencia institucional y el sistema de seguimiento del proyecto. Administrativamente,
d.- En los 4 años del proyecto, se espera un panorama social e institucional organizado y
consolidado en el relacionamiento del Hombre con la Naturaleza, desde la perspectiva de la
sostenibilidad.
e.- Sin embargo, es importante advertir, que el proyecto deberá tener especial cuidado en el
manejo y administración de conflictos sociales del sector, las reivindicaciones populares de
campesinos sin tierra, la presencia de cada vez mas creciente de productores agropecuarios que
aplican tecnologías de punta en la producción agrícola (soja, maíz, trigo) y la ampliación de áreas
forestales y agrícolas a favor de la introducción de pasturas y mejoramiento genético para la
ganadería.
f.- En esta misma dimensión, monitorear de cerca fenómenos sociales como los movimientos
migratorios, la especulación inmobiliaria, la ampliación del umbral de la pobreza, el crecimiento de
la economía informal en la frontera internacional, la reducción de la oferta del empleo en el sector
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primario como consecuencia de la mecanización extensiva y la perdida de la calidad y
productividad del suelo, etc.
g.- Finalmente, a efectos demostrativos y basamento de los programas de información,
comunicación y educación ambiental, se deberá considerar las buenas prácticas propias de cada
identidad socio-cultural (indígenas, criollos, brasiguayos, mennonitas, japoneses, etc), practicas en
proceso de extensión como resultado las relaciones sociales y la interacción social general y
espontánea.
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Annex XX Social Assessment
The social assessment for the project was conducted in two phases. The main objective of the first
phase of the social assessment was to understand the barriers and bridges to achieve the project’s
objective and to propose mechanisms to make the project more responsive to social concerns. The
approach taken consisted of observation, diagnosis, and recommendations. The client has taken a
final decision on the recommendations. The second phase included a consultation process with
other main stakeholders aimed at finalizing project design.
The first phase of the social assessment was conducted by Bank staff following, as resources
allowed, the guidelines published in the Social Analysis Sourcebook (World Bank, 2003). Different
sources were consulted: primary information was collected in (i) two workshops with NGOs
technicians, rural development practitioners and academics, (ii) interviews with key informants, and
(iii) one field visit. Secondary information included papers and books written by local researchers,
rapid rural appraisals conducted by NGOs for the projects they implement and for other GEF
projects, and the social assessment conducted for the PRODERS project, which will be the main
executor of the component 2 of Paraguay Biodiversity project. The project areas of these two
projects are largely overlapped. In addition census and household survey data was consulted. What
follows are the main conclusions of the first phase of the social assessment organized according the
five entry points for social analysis. Some recommendations on how to proceed during the second
phase of the social assessment are also included.
1. Social Diversity and Gender
Four different types of beneficiaries could be identified in the project area: big farmers, mediumsized farmer, small farmers or campesinos, and indigenous communities. All of them have different
assets and livelihoods, and consequently make different use and management of natural resources
and biodiversity:
Big farmers: together with medium-sized farmers owned almost seventy percent of the land in the
project area. They are mainly involved in livestock, maize or soybean production with the minority
of them combining two or more agricultural activities. In the project area the bulk of soybean
producers are located in San Pedro, Itapúa and Alto Paraná departments while the minority are
scattered in Caazapá, Caaguazú and Amambay. Livestock growers are mainly located in
Concepción, San Pedro, Caaguazú and Itapúa. An important share of these farmers is Brazilian (os
fazendeiros) the majority of whom do not reside in Paraguay and have their farms managed by other
Brazilian or Paraguayan farmers. Those who do live in Paraguay are relatively well integrated with
their neighbors but are not organized in cooperatives or other types of collective organization. The
majority of them speaks only Portuguese and understands Spanish. Brazilian farmers are more
innovative and risk takers than Paraguayan farmers, however given that they are less attached to the
territory they are more likely to be less concerned with proper natural resources management. Big
soybean growers and livestock producers make an intensive use of agricultural machinery and are
continuously deforesting to expand their farms. They also make an indiscriminate use of
agrochemicals. This situation posts two important challenges for the project: on the one hand, big
farmers are more interested in short run profits rather than in long term sustainable profits, and on
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the other hand, that is very likely that the project’s direct interlocutor will be an employee and not
the landlord itself.
Medium-sized farmers: constitute a small and decreasing group of farmers. They are mainly
involved in fruits and horticulture production that are sold locally. Some of them are also cotton or
soybean producers and are connected to export chains. They averagely obtain high yields and get
relatively good income. Other medium sized farmers are involved in livestock rising activities.
They have a medium degree of capitalization, some of them own some machinery while others rent
it. In the project area, small farmers are mainly located in Itapúa, Concepción, San Pedro,
Caaguazú, Misiones and Paraguarí. Some of them belong to foreign colonies such as the Japanese
or the Mennonites and have good levels of organization. They have medium levels of human capital
and are opened to receive technical advice. This could be a good group of farmers to implement to
project activities.
Small farmers campesinos: account for 13 percent of the agricultural land in the project area and
compose a large historically marginalized group. The number of campesinos has decreased in recent
years due to the high rates of rural-urban migration. In the project area the bulk of the campesinos
are located in Canindeyú, San Pedro, and Caazapá, three of the poorest departments in Paraguay
where also PRODERS is being implemented. Campesinos generally live in asentamientos (areas
owned by the government that were ceded to campesinos to promote the settlement of poor people
in farming communities) where living conditions are arduous. Campesinos lack every kind of basic
needs including basic infrastructure, sanitations and public services. In addition, they face numerous
difficulties for agricultural production due to the poor conditions of the soils that are highly sandy
and deprived of minerals and nutrients. Campesinos have low levels of human capital, but only a
few are illiterate. Their primary language is Guaraní, however many campesinos understand
Spanish and those who are Brazilian speak Portuguese. The majority of campesinos produce for
self-consumption and also for the market. Cotton is the main cash crop however campesinos are
also involved in soybean and livestock activities. Campesinos use traditional and not mechanized
farming technology, resulting in low yield and consequently in low income. Tapioca, tobacco,
maize, wheat, sunflower, and rice are the main crops produces for household self-consumption.
Compelled by their need to survive Paraguayan campesinos make an intensive use of their soils by
clearing to the water edges and water sheds, over-cultivation, inappropriate land preparation and, in
general, bad crop management. Pressure in buffer zones is also high, mainly because of hunting
activities that affect wild life and wood extraction that is used for posts and firewood. The poverty
situation in which campesinos are immersed post some challenges for the project. On the one hand,
it could be difficult for them to concern themselves with environmental degradation and
biodiversity conservation when their basic needs are unmet. Furthermore, their extreme needs for
agricultural production for daily survival makes them more risk-averse and more likely to refuse the
adoption of new technologies that could affect their production.
Indigenous communities: there are about 49 indigenous communities in the project area. They are
mainly located in Amambay (37%), Canindeyú (19%), and Caazapá (15%). They account for 2.4
percent of the project area. Together with the campesinos indigenous people constitute a historically
marginalized and impoverished group. They highly depend on currently degraded natural resources
for their survival. Research conducted among Paraguay's diverse ethnic groups concludes that most
indigenous communities with assured lands are overpopulated and their environment does not allow
the practice of traditional economic strategies for subsistence, nor do they guarantee, in many cases,
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agricultural practices that can support basic nutritional needs. The habitat occupied by many
communities in recent years has been undergoing deforestation and consequent environmental
deterioration, and in many cases cannot provide communities with a significant part of their
sustenance. There have also been cases of the occupation of indigenous lands by landless peasants
who have then extracted timber and cleared forests.
Indigenous people in the project area belong to the Guaraní linguistic family. The Guaraní culture
knows and applies the concept of sustainable development long before the development community
coined it. For them natural resources management should be conducted in a way that preserves
resources and enhances quality of life. The relationship between the Guaraní and the environment is
regulated by religious norms that also govern communal relations and the tekó porá (virtuous life).
In the Guaraní conception the destruction of the environment is equivalent to the destruction of life,
given that land is the origin of life. Furthermore, they believe that water, sun, air, and land are all
integrated - that they are one and the same and are aimed at creating and protecting life. For the
Guaraní natural resources use is collective. Nobody could use for individual and exclusive purposed
forests and water and nobody could claim that he she is the single owner of that resource.
Indigenous communities are relatively well organized. Indigenous communities present two
challenges for the project: first, their cultural norms may request that project interventions are
phased according to their deliberate times and procedures, second, similar to the campesinos the
fact that they are immersed in an abject poverty situation makes them reluctant to introduce farming
changes that could affect their production.
Given the important differences observed in each of the above groups' livelihood strategies it is
recommended that the project develops differentiated intervention strategies according to the
capabilities and needs of each group. These strategies would also encompass mechanisms to
overcome the challenges detected for each of the beneficiary groups. For big farmers the Project
could work closely with successful Paraguayan initiatives such us the Private Conservation
Network aimed at protecting and making a sustainable use of natural resources by the private sector.
In addition, it could use and help strengthening some new legal figures as the Servidumbre
Ambiental, consisting of a contract signed between tow or more private owners that voluntarily
decide to plan their properties use for conserving existing natural resources. A particular effort will
be make to engage foreign landowners and their farms foremen in these initiatives. A strategic
dissemination strategy should be conducted to particularly target these groups. The strategy should
be designed by the implementation agency together with NGOs.
In the case of campesinos and indigenous communities it has already been agreed that the
intervention strategy will be linked to that of the PRODERS. Basically the Biodiversity component
will be integrated into a more comprehensive package that gives answers to the productive and food
security needs of the farmers. Based on the indigenous strategy already developed for PRODERS,
technicians working with indigenous groups will be properly trained to provide assistance that will
improve natural resources management and biodiversity conservation while respecting the cultural,
political, and social characteristics of indigenous peoples and serving to strengthen ethnic identity.
Assistance will be provided in the languages spoken by the indigenous people and campesinos. It is
recommended that technology will be transferred in a simple manner by using graphs and dynamic
pedagogical approaches.
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Gender Issues: female campesinas play a major role in natural resource management, particularly in
the domestic arena as they are the main decision-makers regarding reproduction purposes.
However, there is a high number of women head of household who not only transform natural
resources for household consumption but also appropriate them. Research has shown that they have
higher environmental awareness, particularly elder women, and that they are more likely to be
involved in innovative productive techniques. PRODERS encompasses a strategy to build capacity
of local women, promote the establishment of Women’s Associations, and encourage their
participation in project decision-making instances. It is recommended that Paraguay Biodiversity
project complements PRODERS efforts by including some specific biodiversity and conservation
trainings and activities particularly targeted at women. These activities should be disaggregated in
the project annual plans and should be tracked through the M&E system.
Youth Issues: rural youth constitute one of the most vulnerable groups. About 37.7 percent of total
rural youth are poor. They do not have interesting employment opportunities and have limited
access to land. PRODERS has developed a strategy to integrate youth into different decisionmaking instances within that project. PRODERS also looks forward to increase youth’s capacity
with specific focus on improving their employability in the agricultural and livestock sectors.
Currently the Directorate of Rural Extension (DEAG) is implementing a new strategy aimed at
reaching youth. Paraguay Biodiversity project should work closely with DEAG and PRODERS and
strength agricultural technicians’ training to better include youth in the project. Before the project
starts the possibility of training youth and later hire them as technical assistance providers should be
explored with the youth themselves and other organizations in particular territories.
2. Institutions, rules, and behavior
A full institutional assessment can be found in Annex 6. The proposed institutional arrangement
includes three execution agencies at the national level that will be articulated to sub-national
institutions. All these institutions have different regulations, functions, capacities, service delivery
culture and a public image. In order to reduce implementation complexity mechanisms for internal
and internal articulation should be clearly defined during appraisal and then included in the project
operational manual. Furthermore, a communication strategy aimed at providing a common message
should be developed before project start. What follows is a summary of some institutional aspects
affecting some of the stakeholders involved in project implementation that could affect project
outcomes.
Itaipú: with concern to Itaipú, there is a risk that other projects implemented by that agency could
negatively affect the Paraguay Biodiversity project's execution. According to rural field workers
several of the projects implemented by Itaipú are based on the direct provision of goods and do not
contribute to build capacities or to raise environmental awareness. In addition, according to the
same source, some of these programs are politically administered. A clear agreement about the
projects' objectives and means of intervention should be reached between SEAM, Itaipú and the
World Bank. Participatory and governance mechanisms could also contribute to minimize political
manipulation of the project (See point 4 for more details o the proposed governance mechanisms).
SEAM: is implementing eight other GEF projects plus other projects supported by various donors.
Many of these projects are implemented in the same geographic area and with similar objectives. A
thorough analysis of the complementarities and overlapping of these projects conducted before the
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Paraguay Biodiversity project commences could be instrumental to maximize project benefits and
strengthen weaker areas.
Local governments: despite they have a high degree of political and administrative autonomy, they
are low endowed with physical, human and financial resources. Only 2 percent of the general
budget is allocated to municipalities, its own resources come from royalties, lottery and property
taxes. Human resources have low levels of human capital, with the high majority having only
primary complete. Only 29 percent of municipalities use planning systems. About 65 percent does
not have an organizational chart and only 16 percent have a territorial organizational plan. About 39
percent have rural cadastres but they are outdated or incomplete. These features are translated in
weak management levels. The Institutional Stregnthening component should include specific
activities aimed at improving local governments managerial capacities. Developing a master plan
with sub-plan for municipal development could be instrumental for implementing this component.
The plan should have specific activities and indicators to be tracked over time. Civil society should
be included in plans definitions and monitoring.
NGOs: it was detected that there are various NGOs doing serious environmental conservation work
in a same territory. However, the NGOs are not well connected and have different approaches that
could be contradictory and could cause a negative impact on the project objectives. To address this,
the project should invite NGOs working in conservation issues to training sessions and clinics
where a common approach for implementing project activities will be developed. A systematic plan
of training for NGOs and technicians should be developed together with the NGOs during project
implementation.
3. Stakeholders
In this section we briefly analyze the interest and influence of the main stakeholders who affect and
potentially be affected by the proposed project. A broader stakeholder analysis was conducted in
the second phase of the social assessment. That analysis included a desegregation of the level and
type of influence that stakeholders could have over the project, opportunities and resources they
have to access project benefits, barriers and constrains that the project could pose on them.
Project Beneficiaries: will be positively affected by the project by receiving technical and nonrefundable assistance for improving the sustainability of their farms. Nevertheless, for big farmer
sustainable farming practices could be detrimental of their short run profits. Given that they have
an important lobby capacity (through the Asociación Rural del Paraguay and other national
farmers’organizations) a coherent political direction from the implementing agencies and other
governmental entities including the Presidency will be critical to accompany the project. A strong
awareness campaign particularly addressed to these farmers could contribute to positively include
them in the project.
Environmental NGOs: there is a myriad of NGOs working in conservation and biodiversity issues
in Paraguay. They are currently supporting SEAM and constitute a strategic partner for this project.
They have already engaged as project partners by contributing with ideas and suggestions for
project design. It is expected that they will be positively affected by the project. In order to increase
project sustainability project governance mechanism should include a seat on project decision
committees for NGOs. The specification of these mechanisms together with the selection process of
NGOs should be discussed during appraisal. It is also expected that NGOs will play a main role in
project execution by providing technical assistance while at the same time they will benefit from
training.
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Wood dealers: despite the existence of a law (515 94) which explicitly forbids export and dealing
wood rolls, beams and pieces, its application is extremely weak, The number of wood dealers is
increasing vis a vis the opening of routes and ways for machinery access. A weak enforcement of
law 515 94 could be detrimental to project objectives. A clear agreement with national and
departmental judges to strength efforts to stop wood dealing should be reached before the project
starts, and this should be controlled during project implementation.
Other local stakeholders: like teachers, local churches, neighbors associations, etc. with a long
working trajectory in the field could help to disseminate, foster, and accomplish the project’s
objectives. Before starting the project it could be very useful to organize a map identifying main
stakeholders in a particular territory and involve them in the implementation of the project.
4. Participation
The high corruption levels that affect both guvernamental and civil society groups have been
detrimental for social participation in Paraguay. Paraguayans show a generalized mistrust in public
institutions that is based obscure practices that used to affect electoral results, low accountability
systems for legislators and the invisible but clear influence of powerful groups in public issues. The
2005 Transparency International’s Corruption Perception Index placed Paraguay in the lowest level
of the ranking with a 2.1 score in a 0 (highly clean) to 10 (highly corrupt) scale. Furthermore,
Paraguay has a very bad performance in the World Bank’s six governance indicators. The
Latinobarómetro survey finds that Paraguayans are the group with the least support (40 percent) for
democracy, as opposed to other forms of governance, relative to other Latin American countries.
Nevertheless, during the last 10 years civic participation has expanded. Civil society
participation in development projects is very incipient but it has achieved good results as
indicated by the PRODECO project, also funded by the World Bank.
In order to encourage participation, Paraguay Biodiversity project will respect the participatory
strategy encompassed by PRODERS, where beneficiaries participate extensively in project
management through decision-making structures established, or strengthened in the case of existing
structures, for the purposes of the project. PRODERS participation strategy includes the
establishment of microcatchment development committees as the main investment planning and
management cells, and, whenever required, of municipal committees with representation from
microcatchment representatives, the municipal government and civil society.
In addition, in order to promote beneficiaries' ownership and increase accountability the following
relevant mechanisms for participation of beneficiaries and other key stakeholders should be
integrated within project operational arrangements. A full description of these arrangements will be
incorporated in the operational manual including specific activities and indicators to track
participation.
Access to information: financial and output information about the project and its activities should be
disclosed at the SEAM and ITAIPU web page. Projects activities and results should be widely
disseminated in local radios and local media in a language susceptible to be understood by project
beneficiaries.
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Governance and Accountability mechanism: governance mechanisms that give voice to
beneficiaries and other stakeholders (i.e. NGOs) in project implementation should be incorporated
in the project design. These mechanisms will be incorporated in the final project design including
the specific budget to be allocated for those activities and indicators to monitor their effectiveness.
In addition implementation arrangements should include channels through which beneficiaries and
other stakeholders will be able to report on project performance on frequent basis.
Procedures to involve stakeholders in M&E: the M&E system will be jointly developed with the
PRODERS team. It has been discussed that the M&E system will be highly participatory and will
include a wide range of stakeholders, especially beneficiaries and their representatives at different
levels. The results will be widely disseminated, especially among beneficiary communities. Regular
meetings and workshops will be held so that participants can identify the project’s obstacles and
problems, especially if difficulties arise in achieving the project’s objectives.
Procedures to involve stakeholders in the second phase of the social assessment: During the second
phase of the social assessment consultation with other stakeholders located in the project area,
including beneficiaries took place. It was an opportunity to gather information that could be used to
adjust project design. The consultation was instrumental to better understand the relevant
characteristics of the affected population, identify further opportunities and barriers for
stakeholders’ participation in the project, gather information on the base line relative, recognize
further risks and actions to mitigate them.
5. Social Risks
Program capture: the main risk that could affect the project's objective and in particular its social
outcomes is the political capture of the project by particular groups that may want to use it for
clientelistic purposes. This risk is more likely to happen during electoral times. The accountability
and governance mechanisms that will be in place before the project starts would help to minimize
this risk. In addition careful World Bank supervision could also contribute to avoid a misuse of
resources.
Land insecurity: another social risk that could affect the project's outcomes is the high insecurity
affecting private lands. Land-less and poor campesinos use to invade big farmers' private properties
looking for wood that can be easily sold at good prices. Campesinos also invade indigenous
communities, who are unable to defend their territory. Stronger control mechanisms and a good
land-access policy could contribute to mitigate this risk.
Adverse impacts: the project does not foresees any adverse impact on its beneficiaries provided that
(i) no taking of land or other assets would take place; (ii) no physical relocation of anyone would be
required; and (iii) working in protected areas and the land use restrictions associated with them that
may occur, are strictly voluntary with each landowner.
Differential access to project benefits by indigenous communities: the indigenous strategy
developed by PRODERS will be used by Paraguay Biodiversity Project Indigenous people will
receive the same project benefits as their non-indigenous counterparts but these will be prepared
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and implemented in such a way as to respect their specific cultural characteristics, including
language and community leadership structures.
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